8.1.a Expert discussion on various aspects of communication in the power grid expansion

Project management: Federal Office for Radiation Protection
Start: 29 November 2017
End: 30 November 2017

Background

In order to get the current scientific status of the communication of electric and magnetic fields in the power grid expansion, the BfS held an expert discussion on the various aspects of communication during the power grid expansion. In addition to scientific contributions, an essential part of the expert discussion was to be contributions from communicators from practice on site. Accordingly, various stakeholders were invited to participate in the discussion and to give their own presentations.

Objective

The aim of the expert discussion was to discuss the findings of social science research with the interested and professional public. The main topics were discourse design, credibility, trust, transparency, and “lessons learned” from previous practical examples of power grid expansion. Insights into these aspects should be gained for the further design of the planned research projects in the area of “risk perception and risk communication”.

Implementation

The expert discussion took place on 29 and 30 November 2017 at the BfS Munich site in Neuherberg. More than 60 people took part in the expert discussion. The group of participants consisted of social scientists, representatives of public authorities, citizens’ initiatives, and grid operators.

You can find the programme of the event here.

Results

1. Risk perception, concerns, and fears

• Population surveys should ask not only about the perception of risks but also about living conditions, the world of work, and the housing situation as important factors in daily life that influence risk perception.
• Trust and transparency are important aspects for risk communication.
• The new or upgraded high-voltage overhead lines and underground cables planned are perceived by the residents affected as “socially unfairly distributed” (“We feel like 2nd-class citizens”) because they do not directly benefit from them.
• Information on scientific uncertainties in risk assessment can contribute to raising concerns about adverse health effects in the population. Perceived inequities in the planning of infrastructure (e.g. when an above-ground high-voltage direct current (HVDC) transmission line is built in one community and underground cabling is laid in the neighbouring community) can also lead to a community becoming more concerned about adverse health effects.
• The perception of scientific uncertainties and the fact that, for example, the new technology of the hybrid line (Ultranet project with a high-voltage direct current transmission and alternating current transmission on the same masts) was described as a pilot project lead to the people affected feeling like “objects of investigation” – according to the statements of citizens who participated in the expert discussion.
• Research results on new findings concerning the health aspects of overhead power lines and underground cables were to be explained on site in order to clarify the practical relevance of these for those affected.

2. Experiences with (risk) communication situations in the field of power grid expansion from different perspectives

• The experience of representatives of public authorities and electricity grid operators shows that lecture-style events are not effective. Communication on site works best at topic tables and at eye level (i.e. the number of participants at events should be rather small or spread over information stands with different focal points).
• Consistent arguments and language use are considered particularly important by most of those participating in the discussion. In particular, trust is inspired by contradiction-free information from different sides.
• Neutral representatives of the authorities and personally known contact persons are important for successful communication.
• There are too few people in the municipalities who can adequately represent decisions and procedures as well as knowledge on radiation protection and health aspects. More personnel capacities at the federal level – a nationwide pool of experts – and knowledge transfer at the local level are considered important.
• It is important to train multipliers such as medical doctors, representatives of the public health sector, or emission control in risk communication on radiation protection and health aspects.

3. Risk communication on radiation protection, the Federal Office for Radiation Protection as a communication partner

• For the BfS, radiation protection in power grid expansion is based on two aspects: Limit values that protect against the proven effects and supplementary precautionary measures in the event of existing scientific uncertainties.
• The precautionary principle serves to minimise exposures and thus protect against adverse health effects in the case of existing scientific uncertainties.
• However, the precautionary principle as protection against possible but not proven adverse health effects with limit values that are “safe” according to the state of knowledge can be misunderstood. Under certain circumstances, information on precautionary measures can increase the existing uncertainty (e.g. this leads to the demand of representatives of citizens’ initiatives for a moratorium on the power grid expansion until the questions are clarified by the pending research projects).

4. Communication of scientific uncertainties, use, and effect of numbers

• The presentation of measurement results on site is seen as helpful and confidence-inspiring. However, the presentation format is not always self-explanatory or easily understandable and can even be misleading for non-experts. The units, which are often used differently by critics, and the large numbers associated with them suggest high loads and great risks.
• Scientific uncertainties in risk assessment should be distinguished from uncertainties arising from communication. Here, a uniform language and, if necessary, uniform explanations for technical terms for citizens’ events are indispensable.

5. A meta-view of communication processes

• There is no “quintessential” or “typical” risk communication. The communication process always depends on the respective circumstances on site.

8.1.b Workshop on risk assessment and risk perception in power grid expansion

Project management: RISA GmbH
Start: 1 November 2018
End: 31 March 2019

Background

Based on the results of the first sub-project, a workshop on risk communication in power grid expansion was conducted as the second sub-project. This workshop focused on two topics:

1. Uniformity of language used by different actors in communication with local citizens
2. Knowledge mediators on site: What are they and how can the BfS reach them?

Objective

There was a goal for each of the two topics:

1. Identification of key terms in the discourse on power grid expansion, low-frequency electric and magnetic fields, and health with relevant stakeholders as well as clarification on how they are used. This should contribute to better information for citizens in the regions affected by the power grid expansion;
2. Identification of relevant groups of knowledge mediators on site and the demonstration of distribution channels to these knowledge mediators.

Implementation

In consultation with the BfS, RISA GmbH and adelphi GmbH designed and moderated the workshop. This took place on 25 and 26 February 2019 at the BfS Munich site in Neuherberg. The first day of the workshop was dedicated to the topic of “key concepts” and the second day to the topic of “knowledge mediators on site”. Representatives of federal and state authorities, citizens’ initiatives, grid operators, the German Commission on Radiological Protection, and other experts took part in the workshop.

Results

Results for Goal 1

It was found that almost all key terms used for communicating with local citizens have a negative connotation (i.e. a negative “image effect”). This poses a challenge for communication. With respect to the effect and use of individual key terms, agreements were reached: Stakeholders almost unanimously agreed with the proposal to talk about “fields” rather than “radiation”. For other key terms, for example the term “danger”, different facets of the term were highlighted; however, no agreement on the use of the term was reached.

Results for Goal 2

Relevant groups of local knowledge mediators were identified:

• Local politicians (e.g. Members of the Bundestag/Landtag, mayors),
• Doctors
• Teachers
• Media (local journalists, technical/specialist journalists).

For these individual groups of knowledge mediators, distribution and approach possibilities were discussed and outlined. For example, local doctors can be reached via local public health officers, who in turn receive information from the state health offices. The federal structure of the Federal Republic of Germany proved to be a considerable obstacle in reaching local knowledge mediators.

Individual possibilities for the distribution of information to the relevant groups of key actors were identified. For example, the provision of information material on the topic for Members of the Bundestag/Landtag or the specialist officers of the parties.

8.2a First survey to determine the level of concern among the population (2018)

Project management: aproxima GmbH Weimar
Start: 1 August 2018
End: 31 July 2019

Background

Many new power lines are currently being planned in Germany. Some are already under construction. However, there are numerous citizens' initiatives, some of which are massively opposed to the power line expansion. Concerns about power line construction vary widely among the population: Among other things, it is about the sensibleness of the power line construction, the health, the loss of value, the disfigurement of the landscape, and much more. The from time to time extensive media coverage also reaches groups of the population that are not directly affected by the power line expansion.

Objective

This survey is one of several planned surveys on the same topic. These surveys will be used to assess the public's perception and knowledge of the health risks posed by magnetic fields in the vicinity of power lines. Concerns about these possible risks require appropriate risk communication by the BfS.

Implementation

The survey was conducted in two parts.

• A German-wide population survey representative of the German population
• An in-depth survey with residents along power lines (existing and newly constructed or planned)

This survey answered two sets of questions:

1. Perception/risk perception and health
2. Knowledge, information behaviour, and action

Result

1. Results on perception/risk perception and health

The concern of the respondents is greater for planned power lines than for existing ones. They are more likely to feel affected and consequently describe their health as worse than residents living further away.
The visual impact of a high-voltage power line is greater than the health impact. Health problems such as sleep disorders, headaches, and concentration problems are more likely to be attributed to the high-frequency fields of mobile communications. Compared with other health risks, the fields from high-voltage power lines are considered to be comparatively low.

2. Results on knowledge, information behaviour, and action

Respondents feel less affected by household appliances, which are considered necessary, than by high-voltage power lines.

Only one quarter of the respondents feels well to very well informed. There is interest in information on health risks, precautionary measures, and limit value recommendations. Apart from the internet and mass media, the main source of information is conversations in one's own environment.
People who live near a high-voltage power line have a greater desire for information. The self-efficacy of precaution is rated higher in the vicinity of high-voltage power lines.

However, for the precaution itself, the state, the energy industry, and the device manufacturers themselves are seen as being more responsible than the individual. About half of the people interviewed said that they carry out preventive measures individually. A precaution that has already been implemented is that 83 % of these respondents use less technical and, above all, energy-saving appliances and also switch them off more often (88 % of respondents with a positive attitude towards precaution). Some respondents switch off the power supply at night.

The state, the scientific community, and the energy industry followed by doctors, citizens' initiatives, and self-help groups are considered to be highly knowledgeable with regard to precaution and low-frequency fields. Both the Federal Environment Ministry and the Federal Office for Radiation Protection are well known among the population (70–80 %).

Specific measurements in one's own living environment are desired by 67 % of the respondents from the main survey. In the additional sample (i.e. the in-depth survey with residents living near existing and future high-voltage power lines), the respondents showed an average interest in on-site measurements of the magnetic field. In the group of people living in the vicinity of an existing high-voltage power line, about half were interested. If the power line is only planned, 42 % are interested.

As they get older, women are more concerned and cautious about the fields from high-voltage power lines than men.

The final report of the project is available in DORIS, the online repository of the BfS.

8.2b Second survey to determine the level of concern among the population (2022)

Project management: aproxima GmbH Weimar
Start: 1 February 2022
End: expected 31 January 2023

Background

In Germany, the power grid expansion is progressing. The next phase of the expansion of "hybrid lines", which will begin in 2021, should be emphasised here. Existing high-voltage overhead lines will be converted for the new type of simultaneous transmission of direct and alternating current. In the course of the energy transition, this technological innovation will be used to transmit electric-ity from distant offshore wind farms and photovoltaic plants. However, several citizens' initiatives are massively opposed to the power line expansion. Concerns about power line expansion vary widely among the population. Among other things, people are concerned about the feasibility of the power line expansion, the health of the general population, the loss of value, and the defacing of the landscape. The sometimes intensive media coverage also reaches groups of the population that are not directly affected by the power line expansion.

Objective

This survey is the second of several planned surveys on the topic. The aim of the study is to assess public opinion and knowledge about electricity grids and the expansion of these and to compare it with the 2019 study. In order to better understand these concerns and to address them appropriately, appropriate risk communication on the part of BfS is needed.

Implementation

The survey will be conducted with a mixed-methods design in two parts:

• a Germany-wide representative survey consisting of a telephone interview survey as well as an online survey (new compared with the previous study) in order to better reach younger population groups.
• an in-depth survey of residents living along power lines (existing and newly constructed or planned)

This survey will answer two sets of questions:

• perception/risk perception and health
• knowledge, information behaviour, and action

Whilst the first survey (2018) focused more on the first set of questions, the new survey (2022) will focus on the second set, especially the knowledge dimension.

8.3.a Review of presentation formats for measuremmeasurementent results of low-frequency fields and their importance for risk communication

Project management: Karlsruhe Institute of Technology
Start: 1 December 2018
End: 31 October 2019

Background

Because of the invisibility of electric and magnetic fields from high-voltage power lines, laypersons have to rely on the statements and calculations of experts or on measurements to assess the level of exposure in everyday life. The exposure can be determined with the help of special measuring devices. According to reports from practice, the communication of measurement results has a positive effect on communication processes. Measuring the strength of the field on site therefore seems to have advantages over communicating field strengths based on calculations. However, it is unclear how exactly such measurements and measurement results should be communicated.

Objective

The aim of this project was to empirically investigate what effects different communicative representations of field strengths measurements occurring in the vicinity of high-voltage power lines have on recipients. The following questions were examined in the project:

Question A: Which presentation formats should be used for the on-site measurement and the communication of the measurement results?

After extensive research into the possibilities of presenting measurement results, the following presentation formats were included in the investigation:

1. an (explanatory) video
2. a numerical infographic (bar graph) with supplementary text
3. an explanatory graphic with image and text elements

Question B: What comparisons should be made with other relevant values?

In order to enable citizens to classify the measured value, it must be placed in relation to other variables. In principle, there are three ways to do this:

1. Ratio of the measured value to the limit value
2. Ratio of the (extrapolated) value at maximum system utilisation to the limit value and the measured value
3. Ratio of the measured value to typical values of household appliances (here a hoover was chosen as a specific object of comparison).

Implementation and results

At first a video of an on-site measurement of the magnetic field strength was recorded. This video was shown to test subjects on a computer. The test subjects were then shown information in different presentation formats.

Results for question A (presentation formats)

The test subjects’ ratings of information clarity, usefulness of information, credibility, and complexity of information did not differ significantly from each other. This means that, for these criteria, it basically made no difference in which presentation format the test subjects had received the information. On a descriptive-statistical level, video performed better than the other two presentation formats.

Subjects who had seen the video remembered fewer details than those who had seen one of the graphics. The difference from the explanatory graphic was significant.

The presentation formats differed in their effect on the risk perception of the test subjects: The risk perception in the video group and in the explanatory graphic group decreased but remained about the same in the group that received the numerical infographic. These differences were statistically significant.

Results of Question B (comparison)

The test subjects of all groups rated the three comparisons in terms of

• a) their understandability
• b) their usefulness
• c) how informative they found them
• d) their comprehensibility

A consistent picture emerges across all points:

First, all comparisons were rated rather positively; a classification was thus welcomed by the respondents. Second, the classification of the measured value compared with the limit value as well as the inclusion of the value at maximum system utilisation were assessed positively. The comparison with a household appliance was consistently rated worse on dimensions a) to d); these differences were mostly significant.

Irrespective of the question of the form of presentation or the question of a suitable comparative variable, the communication of the measured value led to a significant overall reduction in the risk perception of the test subjects. Conclusively, it can be said that the project, which had a fairly large random sample of 274 subjects, provided initial findings on how the communication of on-site measurements can be sensibly designed. The results should be interpreted against the background that the test subjects were not actual residents of areas with high-voltage power lines. They only had to imagine that they lived near such a line and that the measurements were communicated to them in this situation. This limitation will be taken up and addressed in follow-up project 8.3.b.

The final report of the project is available in DORIS, the online repository of the BfS.

8.3.b Investigation of the effect of on-site exposure measurements on risk perception as well as the credibility of and trust in state authorities and grid operators

The result developed in the research project “Review of presentation formats for measurement results and measurement uncertainties of high and low-frequency fields and their importance for risk communication” will be verified by measurements on site. In addition, contact will be made with the contractors of the research project “Assessment of exposure to magnetic fields of the general population” (Project 7.2 of the research programme) in order to be able to support some measurements. Various actors are supported socially and scientifically in their on-site measurements.

Residents will be asked to answer the following questions: What are the expectations of on-site measurements? How understandable are the measurement results? How well can the results be classified compared with other field sources? Which factors increase credibility and trust – and which weaken them? Are on-site measurements accepted differently by different actors (e.g. grid operators, state authorities) and perceived as helpful? These questions will be used to review the current strategy for informing the population.

The significance of the authorities' presence (lectures and attending panel discussions) at information events is determined. Ways of perceiving and processing information are to be researched. Approaches to improve the authorities' communication at events and to enhance confidence in authorities are determined.

Project management: aldephi GmbH, Berlin
Start: 1 September 2019
End: 31 May 2021

Background

Interviews will be conducted to determine the willingness and possibilities of employees of various authorities (public health offices, in particular public health officers and emission control offices) to act as multipliers for risk communication in connection with the expansion of the power grid.

Objectives

In the interviews, the participants will be asked about their existing knowledge on radiation protection during grid expansion. From the results, the need for additional information also arises with regard to the operational implementation of risk communication events. A tool will be developed to support staff and to provide the necessary information (e.g. online training, videos with sample presentations, FAQs, information brochures). The required form and the way of dissemination of this tool will be also identified. This tool will be reviewed, optimised, and evaluated in cooperation with the target group.

Implementation

The project comprises four work packages:

1. Review of the relevant state of the art in science and technology
2. Identification of multipliers and required content
3. Development of training concepts
4. Test of the training materials

Work package 1

In Work package 1, the researcher will review the relevant state of the art in science and technology. This also includes the contractor’s work, important results from others, and the relevant evaluation standards.
What training opportunities are there and how can future multipliers be motivated to participate in this training? The identification of professional groups eligible for training is part of Work package 1. What characteristics must the key persons have in order to be accepted by the population as neutral informants?

Work package 2

In Work package 2, multipliers in the sense of knowledge mediators who can be trained will be identified. The procedure, including data protection, must be clearly explained. It must also be shown how the individual federal states are taken into account. In addition, the content required by the knowledge mediators will be determined as well as whether the training is desired as a face-to-face event and/or online training.

Work package 3

Work package 3 develops training concepts. Here, the two needs identified in the work package will be translated into a concept. The technical content will not be developed by the researcher but rather provided by the BfS. This means that the BfS content must be implemented in such a way that it is understandable and suitable for further training. A training concept for a face-to-face event as well as a concept for online tools will be developed.

Work package 4

In Work package 4, a small test of the training materials and the tools developed will be carried out. Here, proof that the concepts created are understood and are therefore suitable for further training will be provided.

Project management: IZT – Institute for Futures Studies and Technology Assessment
Start: 1 August 2018
End: 31 May 2019

Background

The perception of risks and the various communication channels are subject to constant change. It is therefore necessary to evaluate risk communication measures from time to time. The evaluation supports the further development processes and promotes communicative skills.

Objective

The current project evaluates the risk communication services of the BfS for the power grid expansion. All relevant information supplies of the BfS (including texts such as brochures and websites as well as appearances by speakers with the corresponding messages) will be reviewed. This information will be examined in terms of both content and form. The contractor prepares recommendations for improvements of the information supply examined.

The following questions were submitted:

• How must information be presented so that it is accessible and accepted by residents?
• Is the information offered presented in an appropriate and understandable form in the right place?

Answering these questions helps to provide information that enables citizens to form their own informed opinions.

Implementation

In a first step, a literature and document review together with an analysis on the topic of official risk communication was carried out for the past five years. Based on this, the selected texts, brochures, and videos as well as some appearances by BfS employees were analysed in detail.

In participant observations, the researcher (IZT) took part in interactions between the BfS and citizens in order to directly assess the perception and effect of information supply on both sides. In addition, a representative survey was carried out among the German-speaking population on the topics of risk perception, concern regarding the power grid expansion, awareness of the BfS, and evaluation of some of the information provided by the BfS. In addition, both experts and students of RWTH Aachen University were interviewed about the informational material of the BfS. Another participatory observation took place in the context of several appearances by BfS employees at events on the power grid expansion.

Results

From the sum of the tests, recommendations for action were developed for the texts and messages of risk communication of the BfS in the power grid expansion:

• The user guidance on the websites is not consistent, and the user is often unable to return to the main page. This should be improved. At the beginning, there should be a clear outline and structure to each article. This should be supported with sources. The sources should be clearly distinguished from further/supplementary sources.
• The use of synonyms should be avoided.
• Separate articles for citizens and experts should be created.
• The video could be supplemented by illustrating the distance and the associated decreasing field exposure.
• Graphics and texts should be linked better (i.e. no pictures and/or graphics should be placed into a text if no reference is made to them).
• Reference should be made to the current discussion.
• Attention should be paid to the topicality of the articles posted.

The final report of the project is available in DORIS, the online repository of the BfS.

How does information have to be prepared in order to be accepted by target groups (in this case residents living near high-voltage power lines)? An analysis of exchanged opinions, of "believing", of "knowing" and of the willingness to exchange opinions and evaluations in the process of power grid expansion is being carried out.